The WMO Strategy for Service Delivery and Its Implementation Plan

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1 EVALUATE AND IMPROVE The WMO Strategy for Service Delivery and Its Implementation Plan DESIGN SERVICES ENGAGE USERS DELIVER WMO-No. 1129

2 WMO-No World Meteorological Organization, 2014 The right of publication in print, electronic and any other form and in any language is reserved by WMO. Short extracts from WMO publications may be reproduced without authorization, provided that the complete source is clearly indicated. Editorial correspondence and requests to publish, reproduce or translate this publication in part or in whole should be addressed to: Chair, Publications Board World Meteorological Organization (WMO) 7 bis, avenue de la Paix Tel.: +41 (0) P.O. Box 2300 Fax: +41 (0) CH-1211 Geneva 2, Switzerland wmo.int ISBN NOTE The designations employed in WMO publications and the presentation of material in this publication do not imply the expression of any opinion whatsoever on the part of WMO concerning the legal status of any country, territory, city or area, or of its authorities, or concerning the delimitation of its frontiers or boundaries. The mention of specific companies or products does not imply that they are endorsed or recommended by WMO in preference to others of a similar nature which are not mentioned or advertised. The findings, interpretations and conclusions expressed in WMO publications with named authors are those of the authors alone and do not necessarily reflect those of WMO or its Members.

3 The WMO Strategy for Service Delivery and Its Implementation Plan

4 CONTENTS PREFACE 5 EXECUTIVE SUMMARY 6 PART I. THE WMO STRATEGY FOR SERVICE DELIVERY 9 PURPOSE OF THE DOCUMENT 10 CHAPTER 1: INTRODUCTION 11 CHAPTER 2: LINK TO THE WMO QUALITY MANAGEMENT FRAMEWORK 12 CHAPTER 3: WHAT IS SERVICE DELIVERY? 14 CHAPTER 4: MOVING TOWARDS A SERVICE-ORIENTED CULTURE Strategy element 1: Evaluate user needs and decisions Strategy element 2: Link service development and delivery to user needs Strategy element 3: Evaluate and monitor service performance and outcomes Strategy element 4: Sustain improved service delivery Strategy element 5: Develop skills needed to sustain service delivery Strategy element 6: Share best practices and knowledge 27 CHAPTER 5: IMPLEMENTATION APPROACH 29 PART II. THE IMPLEMENTATION PLAN FOR THE STRATEGY Background Purpose of the Implementation Plan 33 CHAPTER 2: IMPLEMENTATION APPROACH At global level At regional level At national level The Service Delivery Progress Model Advancing to higher levels of service delivery 37 CHAPTER 3: IMPLEMENTING THE STRATEGY AT NATIONAL LEVEL Steps to implement improved service delivery 38 2

5 CHAPTER 4: ROLE OF WMO CONSTITUENT BODIES IN IMPLEMENTING THE STRATEGY Role of the Executive Council Working Group on Service Delivery Role of the Secretariat Assessment reports Milestones to measure progress of the Implementation Plan The short-term (two-year) time frame The medium-term (six-year) time frame The long-term (10-year) time frame 44 CHAPTER 5: LINKAGES WITH OTHER INITIATIVES AND ACTIVITIES Linkages with WMO initiatives and activities Linkages with the WMO Strategic Plan Linkages with the Global Framework for Climate Services Linkages with the quality management system Linkages to training Linkages to capacity development Linkages with the Madrid Action Plan 48 CHAPTER 6: CLOSING REMARKS 49 PART III. APPENDICES 51 APPENDIX 1: SERVICE DELIVERY PROGRESS MODEL 52 APPENDIX 2: ACTING ON THE STRATEGY ELEMENTS 60 APPENDIX 3: GLOSSARY 63 APPENDIX 4: TOOLKIT OF DOCUMENTS AND TEMPLATES 67 APPENDIX 5: SERVICE DELIVERY EXAMPLES 117 APPENDIX 6: AN EXAMPLE OF SHARING BEST PRACTICES AMONG NMHSS 119 APPENDIX 7: ACTION PLAN OUTLINE 121 APPENDIX 8: BIBLIOGRAPHY AND FURTHER READING 125 3

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7 PREFACE The core business of National Meteorological and Hydrological Services (NMHSs) is built around their responsibility to provide essential weather, climate and related information to the community at large. In the provision of weather-, climate-, water- and environment- related services, it is essential to put the users first. It is only by fully understanding why they need our services and how they use them in their decision-making that we can provide services which are optimal. By striving to provide services that best meet these needs, NMHSs ensure that they fulfil their statutory obligations and are consequently held in high regard by the public, governments and users. Service delivery lies at the heart of the WMO mission and daily work. The WMO Strategy for Service Delivery, which is aligned with the WMO Strategic Plan, was approved by the Sixteenth World Meteorological Congress. The Strategy explains the importance of service delivery; defines the four stages of a continuous, cyclic process for developing and delivering services and the elements necessary for moving towards a more service-oriented culture; and describes practices to strengthen service delivery across the entire WMO. The Strategy, described in Part I, is considered an essential complement to the Implementation Plan, presented in Part II. The Implementation Plan has been developed to guide NMHSs in assessing and improving their current service delivery in line with their strategic objectives. Improving levels of service delivery will directly benefit service users and, as a result, lead to stronger community support for the NMHSs. WMO is committed to developing mechanisms that will assist NMHSs in implementing the WMO Strategy for Service Delivery. The Implementation Plan will be published as a recommended practice and will be referenced, as appropriate, in the Technical Regulations (WMO-No. 49). All Members are encouraged to use the Implementation Plan for the WMO Strategy for Service Delivery to assess where they stand in terms of service delivery and continue their efforts to achieve ever higher standards. Michel Jarraud (Secretary-General) 5

8 EXECUTIVE SUMMARY WMO Members recognize the importance of providing high-quality delivery of weather-, climate-, water- and environment- related services. WMO facilitates international coordination, sets standards for meteorological and hydrological products and provides guidance on service delivery. While some great success has been achieved in this regard, Members have agreed that a more uniform and structured approach to service development and delivery is required. As a result, the WMO Strategy for Service Delivery (the Strategy) was approved at the sixteenth session of the World Meteorological Congress (May June 2011), and the Secretary-General was requested to arrange for the preparation of an implementation plan. The Implementation Plan was subsequently prepared under the guidance of the WMO Executive Council Working Group on Service Delivery (ECWG-SD) and was approved by the Executive Council at its sixty-fifth session (May 2013). The goal of the Strategy is to help National Meteorological and Hydrological Services (NMHSs) raise standards of service delivery in the provision of products 1 and services 1 to users 1 and customers. 1 The Implementation Plan provides a flexible methodology to help Members evaluate their current service delivery practices and to serve as high-level guidance for developing more detailed methods and tools that will enable Members to improve their service delivery process. The Strategy is adaptable to the unique needs of Members from both developed and developing countries, regardless of who the users are and whether the products and services delivered are public or commercial. The WMO Secretariat and WMO constituent bodies are responsible for facilitating and coordinating the implementation of the Strategy. Meeting the needs of users with fit-for-purpose 1 products and services is vital for the success of Members as service providers. As the needs of users evolve, the capabilities of service providers should also adapt over time. Methods of distributing products and services are subject to change, especially in the modern era of information technology, and it is important that Members remain agile and capable of responding to these changes. WMO Members who have already implemented a formal quality management system (QMS) are more likely to be focused on meeting user needs and to consider this a key aspect of service delivery. For Members who have not introduced a QMS, implementing a service delivery strategy along the lines described herein will be an excellent step towards improved organization-wide quality management. Members who provide commercial services, which involve contractual obligations, are no doubt acutely aware of the need for high standards in service delivery, but high-quality delivery should also apply to weather-, climate-, water- and environment- related services that are provided to the public and to government agencies and departments. For users who are sensitive to the impacts of weather and climate, the benefits of receiving high-quality services that fully meet their needs are wide-ranging. Members who provide high levels of service delivery through their public weather services (PWS) are likely to be viewed by their users and the organizations that fund them as a valuable return on the investment of public funds. This can help to ensure the sustainability of PWS. The Strategy describes a continuous cycle of four stages, which define the framework for service delivery, and identifies six elements that detail the activities required for high-quality service delivery. 1 See glossary for definition (Appendix 3) 6

9 The four stages of a continuous, cyclic process for developing and delivering services are: (1) User engagement and developing partnerships 1 2 (2) Service design and development (4) Evaluation and improvement 4 3 (3) Delivery The six elements necessary for moving towards a more service-oriented culture are: 1 Evaluate user needs and decisions 4 Sustain improved service delivery 2 Link service development and delivery to user needs 5 Develop skills needed to sustain service delivery 3 Evaluate and monitor service performance and outcomes 6 Share best practices and knowledge The management of service-providing organizations must remain focused and committed to ensure that high-quality service delivery is achieved throughout their organizations. The Implementation Plan for the Strategy has been developed to help all Members assess and improve their service delivery irrespective of their current level and capacity. Current levels of service delivery can be assessed either by the service providers themselves or with external assistance. The assessment should be made with the help of a progress model which shows the type of activities and behaviours that are appropriate for service providers with a certain level of service delivery development. A Service Delivery Progress Model is included in this Implementation Plan to guide Members on the actions and activities required to progress to higher levels of service delivery over the short, medium and long term. Milestones for the implementation of the Strategy are set for the short term (2 years), medium term (6 years) and long term (10 years). The key deliverables resulting from the implementation of the Strategy over the short term will be: (i) an assessment of the current level of service delivery; (ii) putting in place the necessary action plan to start improving service delivery, which should include strengthening user interaction through, for example, surveys, focus groups or workshops for each user group; and (iii) an assessment of the resources required to implement the action plan. Over the medium term, the Implementation Plan aims to help a certain percentage of Members gain at least one level in their service delivery development and to document the process and share lessons learned with other Members. Over the long term, the aim of the Strategy is to develop or strengthen a service culture and facilitate the mainstreaming of service delivery in the programmes and activities of Members service providers, resulting in a tangible improvement in the user s perception of their services. The WMO ECWG-SD will have the overall responsibility for monitoring progress and facilitating the implementation of the Strategy by NMHSs. 7

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11 PART I. THE WMO STRATEGY FOR SERVICE DELIVERY 9

12 PURPOSE OF THE DOCUMENT The purpose of this document is to propose a World Meteorological Organization (WMO) Strategy for Service Delivery (the Strategy) that will assist National Meteorological and Hydrological Services (NMHSs) in the provision of weather-, climate-, water- and environmentrelated services to the public and decision-makers. The Strategy incorporates assessment of user needs and the application of performance metrics. While there is no definitive way to provide services, the Strategy lays the groundwork for Members to improve service delivery by sharing best practices, supporting mutually agreed upon guidelines and increasing user engagement throughout the delivery process. At the same time, it recognizes the many differences in culture, structure, operational practices and resource and development levels of NMHSs. This Strategy, which is both broad and flexible, seeks to do two things: (i) to serve as a tool for evaluating current service delivery practices, and (ii) to provide high-level guidance for developing more detailed methods and tools to better integrate users into the service delivery process. It is adaptable to the unique needs of providers in both developed and developing countries, regardless of who the users are and whether the products and services delivered are public or commercial. The role of the WMO Secretariat will be to facilitate and coordinate the implementation of the Strategy. Definitions of key terms used in the Strategy and the Implementation Plan are provided in a glossary (see Appendix 3). 10

13 CHAPTER 1: INTRODUCTION The primary goal of most government organizations is to fulfil their mission. To achieve this goal, organizations need resources, but resources are often in short supply and must be shared among competing organizations. This competition for scarce resources requires NMHSs to demonstrate their value by realizing cost efficiencies while delivering high-quality and useful products and services. Policymakers and the public continually assess the effectiveness of NMHSs based on their ability to meet the service delivery standards of the nations they serve. Customers and users are more likely to receive services that meet their needs when NMHSs incorporate the role of these users and customers into their day-to-day operations. The ability of NMHSs to meet national service needs is put to the most critical test when an extreme hydrometeorological event occurs. Even the best forecast, issued on time, will have little impact if it did not generate the desired response from those at risk. Most of the utility of weather-, climate-, water- and environment-related information stems from the communication of this information to users, and the response of those users based on such information. Ultimately, the utility of weather-, climate-, water- and environment-related information depends on the degree to which it has a beneficial impact on societal and economic outcomes. When available information is underutilized, value can be increased by improving the forecast, enhancing communication and refining the decision-making process. Effective service delivery, then, is about providing products and services that bring utility to users and customers. Much has been done by WMO to improve service delivery through various international and regional institutions and through programmes and structures such as World Meteorological Centres and Regional Specialized Meteorological Centres, with a view to preparing and providing products that serve as a basis for NMHSs to use in the provision of services. Similarly, at the national level, many NMHSs have made a significant effort to improve service delivery by building relationships with various user communities to better understand and respond to their needs. This Strategy seeks to build upon and institutionalize such practices to strengthen service delivery across the entire WMO by describing key strategy elements and activities related to a serviceoriented culture. The Strategy focuses on understanding the users value chain in order to gain knowledge about users, the decisions they must make and how weather-, climate-, water- and environment-related information is applied to minimize risk and provide benefits not only for specific user groups but also for society as a whole. With this knowledge, service providers are able to develop, produce and deliver services that are useful, relevant and responsive. NMHSs are able to measure the value of their information to society and continually evaluate and improve these services. Adopting a more collaborative approach provides everyone in the service delivery process providers, users and partners with a clear understanding of service needs. 11

14 CHAPTER 2: LINK TO THE WMO QUALITY MANAGEMENT FRAMEWORK WMO encourages NMHSs to implement quality management systems (QMSs) and has defined a Quality Management Framework (QMF) to provide advice on the development and use of QMSs relevant to meteorological and hydrological organizations. The ultimate goal of a QMS is to encourage and support the continual enhancement of products and services, focusing on quality control, quality assurance and quality improvement. Quality management assesses not only the final product or service but also the series of steps or operations taken to produce and deliver the final product or service in a manner that satisfies the customer. The insight gained through quality management allows NMHSs to find, fix and prevent problems that might lead to a faulty product or service. In the context of weather services, for example, the processes that make up a weather forecast and service delivery are: Data collection and analysis Modelling for prediction Model interpretation and forecast production Understanding and use of forecasts Dissemination of products and services to users To improve the quality of weather products and services, NMHSs must assess and analyse each step and substep of the forecast process to determine where root problems may exist and how to correct them in a more effective manner. For example, QMS processes may find that a high-quality product is of marginal use because it is not received by the user in time for decision-making. Improvements in service delivery, then, are a natural consequence of using QMSs. The WMO Strategy for Service Delivery may be viewed as a supplement to the WMO QMF. Even if NMHSs are not required to apply QMSs, this approach stands out as a useful tool to improve the overall effectiveness of products and services and customer/user satisfaction. 12

15 AN EXAMPLE OF A BASIC APPROACH TO QMS The Malaysian Meteorological Service (MMS) implemented a process-based QMS at the Kuala Lumpur International Airport Forecast Centre as a means of institutionalizing effective service delivery. This was done to improve the provision of consistent products and services that meet customer requirements, to raise customer satisfaction through continuous process improvement and to establish quality metrics that measure, review and control the forecasting processes. The top management of the MMS is responsible for the QMS process and is constantly upgrading its effectiveness by: Identifying customer needs and ensuring customer/client satisfaction through questionnaires, feedback and reviews; Communicating regularly with regional forecast offices to ensure and meet customer satisfaction through various avenues including meetings, staff discussions and training; Determining the quality policy and objectives; Conducting management reviews; Identifying and ensuring the availability of resources including skilled personnel, infrastructure, finances, training and internal audit teams. 13

16 CHAPTER 3: WHAT IS SERVICE DELIVERY? To understand service delivery, one must first understand what is commonly meant by service, which this Strategy defines as a product or activity that meets the needs of a user or can be applied by a user. To be effective, services should be: For the user to confidently apply to decision-making Authentic Credible Guaranteed to be accepted by stakeholders in a given decision context Available and timely On the time and space scales required by the user Service delivery Dependable and reliable Delivered on time and according to the required user specification Usable Presented in user-specific formats so that the client can fully understand Responsive and flexible Adaptable to the evolving user needs Sustainable Affordable and consistent over time Expandable Applicable to different kinds of services Useful Able to respond appropriately to user needs Service delivery, then, is a continuous, cyclic process for developing and delivering user-focused services. It is further defined in four stages: Stage 1: User engagement and developing partnerships identifying users and understanding their needs, as well as understanding the role of weather-, climate-, waterand environment-related information 1 in different sectors. 2 Stage 2: Service design and development the process, involving users, providers, suppliers and partners, of creating, designing and developing services and ensuring that user needs are met. Stage 4: Evaluation and improvement collecting user 4 feedback and performance metrics to continuously evaluate and improve products and services. 3 Stage 3: Delivery producing, disseminating and communicating data, products and information (i.e., services) that are fit for purpose and relevant to user needs. 14

17 The following four principles embody an effective delivery of weather-, climate-, water- and environment-related services: User engagement and feedback are essential for designing and delivering effective services; Sharing best practices leads to effective and efficient service design and implementation; Partnerships with other international and regional organizations also engaged in delivering services are essential for maximizing the use of weather-, climate-, water- and environmentrelated information in the decision-making process; The concepts and best practices of service delivery are applied to all WMO activities and accepted by the entire WMO. AN EXAMPLE OF COLLABORATION AMONG DIFFERENT AGENCIES The National Oceanic and Atmospheric Administration and the National Science Foundation in the United States of America developed the Communicating Hurricane Information Program, which focuses on advancing the understanding of decision-makers (such as emergency managers or elected officials) and the general public on hurricane outlooks, forecasts, watches and warnings. The programme demonstrates how national agencies can partner together to support integrated weather-society work that advances people s fundamental understanding of weather-related issues and addresses the agencies need to fulfil their missions. 15

18 CHAPTER 4: MOVING TOWARDS A SERVICE-ORIENTED CULTURE This Strategy identifies six elements and associated high-level activities that are necessary for moving towards a more service-oriented culture. The elements should assist service providers in identifying current areas of success, which may be shared as best practices across WMO, and areas where improvements are needed. The elements and suggested activities described below serve as a framework to guide the development of implementation plans that will include more detailed processes, methodologies and tools. WORKING WITH USERS IN DESIGNING AND DEVELOPING PRODUCTS CHILE S LEARNING THROUGH DOING PROJECT Since 2008, the Meteorological Service of Chile (DMC) has been working with the WMO Public Weather Services Programme to implement the Learning Through Doing project with the objective of enhancing service delivery to the fisheries, agricultural and transport sectors. The project focuses on engaging users from these sectors in order to determine their needs and requirements and to design and produce improved products that meet those needs. It also focuses on improving dissemination and communication channels to ensure easy access to products. Multidisciplinary teams have been formed between the DMC and users from the sectors to steer the implementation of the project. For example, in the transport sector there are a number of services targeting the Los Libertadores border complex, which serves the daily flow of traffic between Argentina, Brazil, Paraguay, Uruguay and Chile. Users of meteorological products and services include public transport services, tourists, freight transportation companies and passengers. Each of these users has different needs requiring different products and services. The newly designed line of products consists of daily weather forecasts and weather warnings. The full report including all of the sectors is available at: pwsp/activities_and_reports_en.html. By 2010, the project had developed 22 new meteorological products and services, improved professional and technical skills in designing and implementing upgrades in products and services and enhanced dialogue and cooperation between users and the DMC, resulting in an increased uptake of meteorological products and services. 4.1 Strategy element 1: Evaluate user needs and decisions The user of weather-, climate-, water- and environment-related information is at the centre of effective service delivery. Users take many forms from the general public to government ministries, the military or private industries. Many NMHSs serve customers and users working for the government, including in the areas of disaster management, agriculture, transportation, health and tourism. NMHSs may also engage with intermediaries, such as the media, who represent a user group or who further develop products and services for end-users. The role of the provider is to identify these users, including intermediaries, to understand their needs and determine how NMHSs can meet those needs, either individually or in partnership with other providers and partners. The evaluation of user needs is not a one-time requirement but a continuous and collaborative part of the service delivery process. 16

19 Key activities Depending on the user group, the provider should regularly engage with users to discuss needs and performance. These represent opportunities for the provider to better understand the users business, their mission and goals, the types of decisions they make on a regular basis, how risk is managed and how the provider s services may contribute. The following are typical questions to ask any user or customer: What is your mission? How do you accomplish your mission? What are your goals and how can we contribute? How do you use our services? How can we improve them? What types of decisions do you have to make? What would help you make better decisions? How do you measure success? Providers should facilitate communication and use of weather-, climate-, water- and environmentrelated information, and in some cases, provide training on specific products and services. User engagement is also a good opportunity to discuss, promote and facilitate interdisciplinary research and development of user-specific products and services. How to engage users will vary by user group and country. Interactions may be formal or informal, in person or virtual, and may occur through forums, focus groups, workshops, meetings, conferences, surveys, correspondence or face-to-face with individual users. The frequency of these interactions will vary, but must be ongoing and should take place more than once a year. They should not only involve users, but also partners, such as private sector organizations and the media, and other government organizations, as necessary. NMHSs should leverage existing WMO guidance and toolkits (see Appendix 4), as well as new guidance and best practices coordinated by the WMO Secretariat to build a core set of service delivery criteria. NMHSs should develop methods and tools to document and validate user needs and expectations and to communicate them within the organization and to other partners as necessary. User needs should then be converted into requirements to be met by existing or new products and services. User requirements should be evaluated to ensure that they fall within the mission of NMHSs and that NMHSs have the capability to meet those requirements. Evaluating user needs for such purposes is what this Strategy calls fit for purpose. NMHSs should not evaluate user needs in isolation, but rather in collaboration with users, providers and partners. Having a service be fit for purpose implies 17

20 AERONAUTICAL METEOROLOGICAL SERVICES Focusing on the customer is considered the most important quality management principle by aeronautical meteorological service providers. Customer requirements are documented through relevant bodies of the International Civil Aviation Organization (ICAO) and national regulatory agencies, and the quality of services as perceived by the customer is monitored. This is achieved through verification and evaluation processes, regular customer satisfaction surveys, liaison group meetings with customer representatives (such as pilots, dispatchers, air traffic personnel and civil aviation regulators) and visits to the operation facilities of airlines and to meteorological offices. User suggestions and feedback are formally recorded and followed up. A formal response is given to the user before a suggestion or feedback is considered closed. The liaison group meetings also provide a forum for considering and documenting agreements on local arrangements for the provision of aeronautical meteorological services as stipulated in ICAO: Annex 3 Meteorological Service for International Air Navigation / WMO: Technical Regulations (WMO-No. 49), Volume II - Meteorological Service for International Air Navigation, C.3.1. This user engagement process also helps to meet many of the audit requirements set by the QMS and aviation safety oversight. Services for airports could be considered as an area for improvement. With the exception of Terminal Area Forecasts (TAFs) and basic warnings, services for airports are not covered by ICAO regulations and have to be agreed upon by both airport operators and service providers. This can lead to difficult situations when airports experiencing serious weather disruptions are either not relying on meteorological information at all or are receiving information from independent service providers that are not coordinated with the services for airlines and air traffic management. that an agreement has been reached, either implicitly or explicitly, among all involved which takes into account some or all of the following: Current and evolving user needs; Provider capabilities, including strengths and limitations; What services will be provided and how they will be provided; How services will be used; Expectations of acceptable outcomes and provider performance; Acceptable costs or levels of effort; Risks inherent in applying information to decision-making. NMHSs have limited resources and capacity, and therefore cannot be expected to provide everything to everyone. A clear fit-for-purpose agreement understood by all parties sets clear expectations and minimizes risk for NMHSs while achieving the best possible solution for users. If appropriate, NMHSs may want to explicitly outline the agreement reached with the user in a service-level agreement (SLA). Agreements with other suppliers or partners may be documented in operating-level agreements. 18

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